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PRELIMINARY REPORT 



OF THE 



Committee of fifteen 



Appointed by the State Superintendent 
of Schools to Investigate Educational 
Needs and Conditions in Wisconsin. 



ISSUED BY 

C. p. GARY, State Superintendent 






"It is easy to ridicule the country school. * * * The 
present rural schools, with all their shortcomings, are good 
schools because (1) they are already in existence, (2) they are 
the schools of all the people, (3) they are small and thereby 
likely to be native and simple, (4) they are many and therefore 
close to the actual conditions of the people. ' ' 

L. H. Bailey in The State and the Farmer. 



mi 21 My/ 



»^.^ 



K 



^^ FOIiEWORD. 



The Committee of Fifteen was appointed by the state super- 
intendent of schools immediately after the close of the last legis- 
lature. It was appointed principally for the reason that the 
state superintendent felt that it was highly desirable to have pub- 
lic attention centered more upon common school education than 
it had been in the past. He also had the feeling that in the legis- 
lature there was relatively too much attention given to the de- 
mands of higher education and too little to the common schools. 
He hoped that the investigations of such a committee, composed 
of men and women as capable as any to be found in the state to 
perform this particular function, would have weight with the 
public and weight with the next legislature. The creation of 
such a committee was not authorized by law and the members 
have served without pay. I think it will be agreed that the pub- 
lic owes to this committee a respectful hearing. They are men 
and women who know Wisconsin conditions and know as well 
as anybody can know what ought to be done to remedy evils. 
Their views are set forth in terse language, easily understood. I 
commend the report most heartily therefore to the friends of the 
country school in our state. I have not been a member of this 
committee ; I have not written any part of the report ; I have not 
even suggested anything that should be written into it. I take 
this public means of thanking the committee for its painstaking 
and thoughtful work in the public interest. The committee will 
be continued and this report may be considered as only a portion 
of the public service the committee will render. 

C. P. GARY, 
State Superintendent. 
Madison, Wisconsin, 

December 27, 1912. 



"The present enormous chasm between the ignorant and the 
intelligent, caused by the unequal distribution of knowledge, is 
the worst evil under which society labors." 

— Lester F. Ward in Dynamic Sociology. 



INTRODUCTION. 



BY STATE SUPEKlNTENUEiNT, C. P. GARY. 

The past decade is a period in which there has been iniexaiu- 
pled, if not feverish, activity in the study of all sorts of prob- 
lems of social life the civilized world over. No phase of life 
has escaped attention. The lime light has been turned upon 
country life and country conditions as never before. A good 
deal of this effort to learn about and to improve country life 
has originated in the colleges, universities and cities. The 
country as such has not in general reached any acute stage of 
selfconsciousness. The people on the outside who wish to im- 
prove the country may be inflvienced in some cases by motives 
of self-interest. 

There are, however, many farsighted men, who have no ax 
to grind, but who see clearly that we must be alert to prevent 
the degeneracy that has fallen upon country life in some of the 
older sections of our country. Deterioration over rural areas 
is a slow and generally unobserved process. Progress is more 
noticeable where progress is the order of the day, but even here 
the change is usually slow and is only noted by the careful ob- 
server. 

Wisconsin is still young and flourishing and our country pop- 
ulation is making more or less steady progress. It is of the ut- 
most importance that every good citizen of the state whether a 
resident of the country or the city, should devote thought and 
energy to the problem of keeping country life attractive, 
wholesome and progressive. In some portions of the east we 
are told, the dairy industry, just now so flourishing and profita- 
ble with us, has carried off the cream of their soil in the form 
of dairy products. It will do the same with us in the course 



of time if we do not look constantly to the building up of the 
land and the preservation of its fertility. 

In some portions of our state the farms are already falling 
into the hands of renters with short leases, whose self-interest 
requires not the slow building up of the soil but the skimming 
of the cream from the soil. Gradually, one by one, farmers in 
the older settled portions of the state are leaving the land and 
moving into the city in order that their children may secure 
an education and they themselves have the advantage of more 
congenial social surroundings. Such changes are to some ex- 
tent inevitable, but the better the social conditions in the coun- 
try, including schools, churches and the like, the less tendency 
there is for such changes to take place. 

Our students of society tell us that in many of the older sec- 
tions of the United States the active, restless, brainy young 
men and women have for the past three or four generations 
gone west or moved into the cities. As a result where this has 
happened the majority of those who remain are sluggish, inert, 
unambitious and unprogressive. Professor Ross of the Uni- 
versity of Wisconsin who made a study of some of these depleted 
regions, says, "In such districts the children are, in general, 
so listless that they have to be incited to play. * * * Out- 
siders agree that the average farmer accomplishes no more 
in three days than an active, bright man can do in 
one day." In another connection he says in picturesque 
phraseology, "The pond is fished out and only the bull- 
heads and suckers remain." Such a population as that 
just described can never feed the world, build roads, develop 
churches, foster schools or regenerate itself. The yeast is out 
of it. The ferment trickles away as rapidly as it is produced. 
Wisconsin must be preserved from such a fate in the years to 
come. 

Our present farming population has in it great quantities of 
the leaven that will leaven the whole lump if given a chance. 
Great numbers of our people are eager for improved farms, im- 
proved roads, improved churches, improved schools, and im- 
proved social life. The leaven is working everywhere. The 
brainy men and women have by no means all gone from the soil 
in our state. Every day I meet men from the country who are 
the equals of the men I meet in the city. They are carrying on 
scientific farming operations; they are raising blooded stock; 



_7 — 

they are improving the soil; they are improving the social life; 
they are the saving salt of country life. May their tribe never 
grow less. What our capable young people want is opportunity, 
and opportunity is what the present generation owes to the next. 

Thus far the country has been regarded by many as a good 
place to be born in and to spend the years of childhood in, but 
not a place to remain in for one's life Avork. The city has been 
the place of opportunity in the past. Country life has been re- 
garded as slow^, poky and lacking in social stimulus; it has 
been looked upon as unscientific, rule of thumb; it has been 
isolated, and too often dreary; its gossip has not been about 
world affairs, but too often about the petty affairs of neigh- 
bors, the weather, and the petty savings in not merely luxuries, 
but even the necessities of life. 

Changes have been rapidly occurring, particularly in the 
past ten years. The change does not affect one phase of coun- 
try life alone, but all in greater or less degree. Better coun- 
try school conditions and better general conditions go together. 
The more farm prosperity the more money for schools, the 
more time for children to go to school, and the greater the de- 
sire of parents to give their children an educational opportun- 
ity. Increase of prosperity means better roads, better 
churches, better food, better physicians, less crowded condi- 
tions in the home, less worr}^ about the wolf at the door. The 
improvement of country schools keeps pace "wath but can not 
greatly outrun other sorts of general improvements. 

Great changes for the better have taken place in country ed- 
ucation in the past ten years. Hundreds of districts — nearly 
five out of every six the state over as a matter of fact — have 
provided ventilation by means of ventilating stoves. They 
have put the outbuildings into decent shape ; they have added 
supplementary readers, maps, blackboards ; they have in- 
creased the number of books in their libraries by 200% ; and 
have furnished cases and card catalogues for them; they have 
increased the expenditure of money per child enrolled by 
100% ; they have increased the school year from seven months 
to eight; they have increased the annual compulsory period 
for each child by 100% ; they have added agriculture to the 
school course as prescribed by law ; they have increased the 
number of county training schools from three to twenty-seven. 



and increased the course of training 100% in point of time. 
High schools have awakened and are vying with the county 
training schools, as are also the state normals, in the training 
of country teachers. 

School board members by thousands in the aggregate have 
come out every year for the past eight years to school board 
conventions, and their interest constantly increases. There are 
more calls for good teachers, more evening programs in which 
adults take part, more demand for work in the school relating 
to life on the farm than ever before. Much more in the same 
strain might truthfully be said. But let us turn abruptly from 
the optimistic to the less welcome aspect of the country school 
problem. 



There is not one country school problem — there are many. 
They are all easily comprehended, and are understood by all 
school men who have come into vital contact with country life. 

The most fundamental difficulty of all may be stated as fol- 
lows : 

With many noteworthy exceptions, it may he said that in a 
given school district there are too many people who support the 
school in their community in a half-hearted way. They do not 
appreciate as fully as they should what it costs in time, money, 
effort and good will to make the school of vital significance in the 
life of the community. 

In such districts there are usually a few who greatly desire 
to improve the local school, but they meet with so many dis- 
couragements, and are so frequently outvoted in their efforts 
to bring the school to the higher level that they often weary in 
well doing. A united community is the prerequisite of a good 
school. 

The problem in such a case is to educate the community to 
the extent that all or a majority will be willing to co-operate 
heartily in the improvement of the school. When this funda- 
mental difficulty is removed in any given district, certain re- 
sults follow : 

1. First and most fundamental of all, the community is 
ready and willing to pay a good salary for a good teacher. 
The board is encouraged to search for a teacher who is eapa- 



ble, not only of giving instruction in the usual branches taught 
in the school, but who is also capable of developing the moral 
nature of the children, of cultivating right ideals of good citi- 
zenship, and of developing community interest and co-opera- 
tion among the adults. Such a person is usually a man or 
woman of considerable maturity, experience and training. As 
people are constantly passing out of the business of teaching, 
there must of course be a constant influx of inexperienced peo- 
ple, but districts that are fully awake to the needs of the situa- 
tion are not likely to take young people who have had no train- 
ing for the business of teaching. 

2. In the second place, a school district that is bent upon 
having a good school will encourage the board in furnishing 
the necessary equipment for the school. Usually this equip- 
ment is not expensive, but it does involve the provision for ven- 
tilation, proper seating, proper lighting, a sufficient supply of 
maps, supplementary readers, and other materials usually in- 
volving but little cost. 

3. In such a district the people will be alert to see that all 
children have an opportunity to go to school, or if necessary, 
that the compulsory education law is complied with. 

4. If a district is weak, either financially or in school popu- 
lation, the district will be willing, if such a plan is feasible, to 
consolidate with nearby districts for the purpose of building 
up a strong central school. 

5. The school district that is sufficiently awake to its needs 
will desire to have the country school carry on its work of in- 
struction so as to be of most benefit to pupils whose homes are 
in the country as contrasted with the city, and whose natural 
interests are in country life. To do this successfully requires a 
type of teacher and a type of professional training at present 
rather uncommon. 

6. Districts of the type above described will be eager to have 
thorough and adequate supervision of their schools by a compe- 
tent officer whose business it is to perform this important pub- 
lic service. 

It will be readily understood that any lack of appreciation 
of the value of education, any lack of ability on the part of the 
people to discriminate between a good teacher and a poor 
teacher, any lack of harmony in the district, is more or less 
fatal to the well being of the school. The Committee of Fifteen 



— 10 — 

has well said that our main problem is to get communities to 
act for themselves. This means a good working majority in 
every community favorable to a good school and willing to 
make the necessary sacrifices to secure it. Where local inter- 
est is at a low ebb, missionary work is required. The only al- 
ternative is for the state to step in and make use of the iron 
hand of central authority. 

There can be no question that in a democracy it is more in 
conformity with our ideals and doubtless better in the long 
run to educate communities up to their duty rather than to 
compel them by external authority to give their children the 
educational opportunities they need. This theory, however, 
need not be carried to extremes, but may be reversed in aggra- 
vated cases, since the state is always more concerned about the 
proper education of its young than any other one function it 
has to perform. The duty to see that the rising generation is 
properly educated is fundamental, and in the last analysis the 
responsibility of the state can not be shifted. It is the duty of 
the state to make all necessary provision for the adequate train- 
ing of teachers, for aid to weak districts, for general supervis- 
ion of schools, for condemnation of unsuitable buildings, for 
educational enlightenment and stimulus to communities, and 
for wise educational leadership generally. The problem of giv- 
ing all or the vast majority of country eliildren good educa 
tional facilities is one that can never be solved by educational 
spasms, the hasty introduction of new subjects or educational 
fads, or by car window investigations. It means principally a 
wise and persistent campaign of education among the adults. In 
its broadest sweep it means not the effort of a day or a decade, but 
of a generation. 

The work of school board conventions in the past eight years 
has accomplished wonders in this direction, but it reaches not 
more than one in twenty of the people that need to be reached. 
The office at Madison is much in need of more help : the county 
superintendents are in need of more help. The coming legisla- 
ture can aid in these particulars and a number of others, if it 
is kindly disposed. 



11 



PKELIMINARY KEPORT OF THE COMMITTEE 
OF FIFTEEN. 



Hon. C. p. Gary, 

State Superintendent of Public Instruction, 
Madison, Wisconsin. 
Dear Sir : — Your committee appointed to study the school sit- 
uation in Wisconsin, and suggest ways and means for increasing 
the efficiency of the schools has held several meetings during the 
past year. As an outcome of our investigations and delibera- 
tions, we submit to you at this time a preliminary report contain- 
ing suggestions which may be of value in outlining certain gen- 
eral policies which, if they can be carried out, will, we believe, 
result in the betterment of our school system. The suggestions 
may be divided into two groups: (1) those which have to do 
with legislation; and, (2) those which have to do with educa- 
tional activities among the people themselves. 

Preliminary discussion and conclusions reached. 

The first meeting of the committee was held in Octo])er, 1911, 
at which all members were present, as follows: 

Miss Rose Cheney 
Mr. A. H. Christman 
Mr. George F. Comings 
President F. A. Cotton 
Hon. John S. Donald 
Supt. Leo P. Fox 
Mr. Charles L. Hill 
Prof. F. S. Hyer 
Prin. M. H. Jackson 
Inspector W. E. Larson 
Hon. A. H. Long 
Supt. Ellen B. McDonald 
Prof. M. V. O'Shea 
Prof. C. E. Patzer 
Hon. Geo. E. Scott 



— 12 — 

Before effecting an organization, the members discussed educa- 
tional matters in a general way in order to determine the proper 
method of procedure, as well as to ascertain what the committee 
could do that would be of the greatest benefit to the schools of 
the state. The conclusions reached as a result of this discussion 
were as follows : 

1. The work of this committee should not be primarily to carry 
on any detailed investigation of schools. We have now sufficient 
data relating to general educational conditions in the state, par- 
ticularly with reference to the rural schools. Every member of 
the committee has had more or less direct contact with the schools. 
Seven of the members have as county superintendents come into 
close relation with school work in all its phases. Three members 
have had opportunity to study educational conditions and needs 
as teachers in county training schools. As instructors in high 
schools, many have had an opportunity to study the weaknesses 
of both elementary and secondary schools. Some members have 
been on school boards, and have looked at school problems from 
that angle. Most of the members of the committee have had ex- 
perience as workers in teachers' institutes or in farmers' insti- 
tutes, and have had opportunities to observe school conditions in 
various parts of the state. All the members have thus been 
brought more or less intimately into contact with the country 
schools. In fact, the committee feels that the experience and ob- 
servation of its various members cover practically all the educa- 
tional interests of the state. Statistical data, sufficiently ade- 
quate for the work of the committee, can be obtained from the 
records already made, or gathered through the state superintend- 
ent 's office. 

2. The work of this committee should be chiefly to study ways 
and means of improving the schools ; to devise methods by which 
educational interest may be aroused; to suggest what may be 
done for the betterment of schools through legislation ; in brief, 
to outline a campaign for educational improvement, and to de- 
termine the best methods of bringing about such improvement. 

3. In this work the committee realizes that it has an impor- 
tant and a difficult task. The interests of the people must al- 
ways be kept in mind. School people often fall into the habit 
of thinking that the school is an institution which exists for its 
own sake. It is difficult to get the proper view-point, and see the 
school iu its relation to life. The committee, therefore, while try- 



— 18 — 

ing to suggest educatioual improvement for the people, will con- 
stantly keep in mind that it is of the people, and thus represent 
their best interests. 

Criticisms of the schools iy the people. 

In this preliminary discussion the rural school inspector called 
the attention of the committee to the circular blanks which had 
been sent out two or three months before by the state superin- 
tendent, asking for criticisms and suggestions regarding the 
schools. About five hundred of these blanks were returned. A 
summary of the answers showed that, in the opinion of those who 
replied, the greatest weaknesses of our country schools are the 
following : 

1. There are too many weak, inefficient, untrained teachers. 
Many of them are city girls who have no knowledge of rural life, 
and no interest in its development. As a rule, they are unprac- 
tical, and do not know the difference between essentials and non- 
essentials. The weaker ones offer to teach for low wages, thereby 
keeping the better ones out of the work. 

2. In many cases there is ignorance, lack of interest, and lack 
of co-operation on the part of the parents. Frequently parents 
take the part of the children against their teachers. 

3. Cases have been cited where inefficient school officers neglect 
their duties. This results in poor, unbusinesslike management of 
the schools. Such officers take little interest in the school and in 
the progress of the children. They hire the cheapest teachers 
and neglect keeping the school sanitary and properly equipped. 

4. There is much irregular attendance. In many cases the 
average daily attendance is but one-half of the enrollment. There 
is not a strict enough enforcement of the compulsory attendance 
law. 

5. There is a lack of proper supervision. 

6. Many schools are too small. In such schools it is difficult 
to get good teachers. The interest on the part of children and of 
parents is small. The attendance in these schools is usually ir- 
regular and children leave school too young. 

7. There is a lack of thorough work in the fundamentals. 
Schools try to cover too much ground. Children are pushed too 
fast in their studies. 



— 14 — 

8. Children do not stay in school long enough. Many parents 
can not send their children to higher schools, and, besides, it is 
a questionable policy to send children away from home at an 
early age. 

Suggestions made hy the people. 

Among the suggestions most frequently given on the same 
blanks were the following : 

1. Train the teachers for the work in country schools. Do 
not let them teach before they are trained for this work. 

2. Pay the good, efficient teachers higher wages. 
8. Enforce the compulsory attendance law. 

4. Stir up interest in educational matters by means of parents ' 
meetings, debating societies, farmers' clubs, school entertain- 
ments, etc. Make the school a social and civic center. 

5. Secure better supervision. 

6. Do more thorough work in the fundamentals. Make the 
school work more practical. Adapt the work to the needs of the 
community. 

7. Consolidate the schools where they are small, and where it 
is feasible. 

Helpful forces mentioned. 

Among the helpful forces at work for the improvement of the 
country school the following were mentioned: 

1. The school board conventions. 

2. Special state aid for country schools. 

3. The compulsory attendance law. 

4. The county training schools for country teachers. 

5. Public meetings of various kinds. Farmers' clubs. 

6. Strong work of the county superintendent in organizing 
educational forces and stirring up interest in educational mat- 
ters. 

7. Teachers' meetings, institutes, etc. 

The above summary shows that those who answered the ques- 
tionnaire have made a good diagnosis of the educational situation. 
It may also be mentioned that the replies sent in called attention 
to many good things that are being done in some of our country 
schools. The fact that there are good schools is of the greatest 
importance. It is our duty to find the strong points as well as the 



— 15 — 

weak ones, in order that we may know what remedies to apply to 
remove the defects. 

The needs of the country schools. 

After a full discussion, it seemed to the Committee that its 
work should be determined by the following needs : 

1. The need of stronger teachers, especially in our country 
schools. Ways and means ought to be devised by which better 
prepared teachers can be secured. 

2. There is need of better supervision. 

3. There are in the State a great number of small schools. In 
many instances, these schools should be combined so that better 
teachers can be secured, and better work done. 

4. A campaign needs to be conducted, in order to get the peo- 
ple interested in educational matters. One of the principal rem- 
edies suggested is using the school as a social and civic center. 

5. Children are leaving school too early. Provision ought to 
be made wherever possible for higher school work in country 
communities. 

The foregoing five needs seemed to be the most pressing ones. 
Many others were also mentioned, among which were school at- 
tendance, a more equitable distribution (levy) of school taxes, 
more money for the elementary schools, courses of study adapted 
to the needs of the connnunity, provision for the education of the 
children who live beyond the two-mile limit, a minimum salary 
law for teachers, etc. 

Organization of the committee. 

After this preliminary discussion, the Committee proceeded to 
effect an organization. Mr. A. H. Christman was elected chair- 
man, and Mr. W. E. Larson, secretary. Sub-committees were 
appointed to work out the problems mentioned above, and to re- 
port at subsequent meetings. The following sub-committees 
were named : 

1. CONSOLIDATION. President F. A. Cotton, Prof. M. 
V. O'Shea, and Mr. W. E. Larson. 

This committee was instructed to prepare material for a bulle- 
tin on the subject of consolidation, and to make recommenda- 
tions. 



^16 — 

2. PREPARATION AND QUALIFICATION OF TEACH- 
ERS. Mr. C. E. Patzer, Ellen McDonald, and Hon. J. S. Donald. 

This committee was instructed to suggest changes in our pres- 
ent certification laws, and to make recommendations toward the 
establishment of a permanent system for the training of teachers. 

3. SUPERVISION. Mr. W. E. Larson, Mr. L. P. Fox, and 
Mr. F. S. Hyer. 

4. SOCIAL CENTER MOVEMENT. Miss Ellen B. Mc- 
Donald, Miss Rose Cheney, and Mr. Geo. Comings. 

5. HIGHER EDUCATION FOR COUNTRY COMMUNI- 
TIES. Mr. M. H. Jackson, Mr. Charles L. Hill, and Mr. Geo. E. 
Scott. 

Suggestions and Recommendations 

Following the first meeting of the Committee, other meetings 
have been held as follows : In November, 1911 ; May, 1912, and 
September, 1912. At these meetings, the sub-committees have 
made reports which have been discussed and acted upon. As a 
result of the deliberations, the Committee submits the following : 

1. Consolidation. 

The bulletin on consolidation of schools has been prepared 
and submitted to you. In this bulletin we have compiled in- 
formation that we believe will be of value to the people of the 
state. In preparing it the present laws of the State have been 
kept in mind. We have found that under the laws as they now 
stand, consolidation can be effected only in a cumbersome way, 
and so we make the following recommendations : 

(a) The present law relative to the changing of district bound- 
aries should be simplified. We believe it would be a better plan 
to have a County Board of Education, which would have matters 
of this kind in charge. Such a Board would be a more permanent 
body, and could decide upon these changes from a broader view- 
point than is possible under the present arrangement. The re- 
sult of this change would be that it would be possible then to do 
some definite constructive work in building up school centers. 

(b) The existing law, providing for the transportation of pu- 
pils, should be changed. At present, the law does not compel 
the establishment of transportation routes in case consolidation 
is effected. The law should be so framed that the people would 



— 17 — 

be guaranteed a safe system of transportation in case several dis- 
tricts are united. 

(c) The State should provide in some way for a fund to be 
used for transportation purposes. At present, special state aid 
for transportation is taken out of the apportionment to the com- 
mon schools. The transportation of school children is an impor- 
tant phase of rural-school education, and the State should recog- 
nize its importance by providing special funds for the purpose. 

(d) In some cases, where the attendance falls below a certain 
point, and where it is possible to make provision for the children 
to attend neighboring schools, consolidation should be made com- 
pulsory. Provision for arranging the details in such cases could 
be put into the hands of the County Board of Education. 

(e) Instead of offering special State aid, depending upon the 
number of children transported, there ought to be made a pro- 
vision for the payment of a definite sum to the consolidated dis- 
trict, such sum to be determined somewhat by the size of the 
district, or of the school. 

2. The preparation of teachers. 

In regard to the phase of the problem dealing with the pre- 
paration of teachers for country schools, the Committee makes 
the following recommendations : 

(a) After January 1st, 1915, no teacher should be permitted 
to teach in any public school in the State who shall not have had 
at least a year of professional training. No person should be ad- 
mitted to this course who shall not have had at least the equiva- 
lent of two years of high-school work. This provision, however, 
should not affect the teachers who are in the service at the time 
this provision would go into effect. 

(b) The Committee recognizes the importance of the County 
Training Schools for teachers. In them is found the professional 
atmosphere necessary for the proper training of the country- 
school teachers. There are now twenty-seven county training 
schools in the state. To carry out the suggestion, made in (a), 
it would be necessary in the next few years to organize an addi- 
tional number of such schools; for, while normal schools also 
train teachers for country schools, they will hardly be able to 
meet the larger demands if all teachers must have a minimum 
of a year of professional training. 



— 18 — 

(c) The Committee recommends that the Normal Schools mod- 
ify their courses of study so as to meet the needs of those stu- 
dents who are preparing to become principals of state graded 
schools. 

(d) The Committee recommends that the certification law be 
so amended that the summer schools for teachers may be better 
able to meet the needs of country teachers, both from the aca- 
demic and the professional point of view. 

To any one who has made a study of the country school prob- 
lem, it is evident that only qualified and mature teachers should 
be engaged to teach in the one-room country school ; but just the 
reverse is true. The teachers of the one-room country schools are 
the most poorly prepared and the most immature of all teachers. 
In 1909 a law was put on the statute books requiring a minimum 
professional training for all teachers. This law makes it neces- 
sary for every applicant for a third-grade certificate, in addi- 
tion to passing an examination in the subjects required by law, 
to attend a professional school for teachers for at least six weeks 
to pursue a course of study in school management and in the 
methods of teaching reading, language, arithmetic, and geog- 
raphy. 

This was an important forward step, for it established by law 
the principle that teaching, even in a country school, is a pro- 
fession, and that special training is necessary to equip teachers 
for their work. 

The certification measure of 1909 is a good law, but it should 
be amended in such a way as to require young teachers to devote 
their time in summer schools to the subjects they are expected 
to teach. After the applicants for a third-grade certificate have 
attended their first summer school, and have taught a year on 
their first certificate, the law is rather a handicap than a help. 
It provides that after the first year, holders of third-grade cer- 
tificates may renew their certificates by attending a second sum- 
mer school and securing credits in two subjects. This provision 
has been interpreted to mean that holders of third-grade certifi- 
cates, in order to secure a renewal, must take work in second or 
first-grade subjects, and secure credits in any two subjects. Sec- 
ond-year summer-school students have therefore invariably taken 
up two or three second-grade subjects, by means of which they 
not only secured a renewal of the third-grade certificate for a 



— 19 — 

year, but gained standings that applied on a second-grade cer- 
tificate as well. In other words, the law, after the first year, re- 
quires the teachers to work for second and first-grade certifi- 
cates, the branches of which are only remotely connected with 
their work as teachers. 

It is therefore suggested that the law be changed in such a 
way that teachers who have taught a year be required to renew 
their third-grade certificate by attending a professional school 
for teachers, and selecting four subjects from the list of those 
they are required to teach, in three of which passing marks must 
be secured. This, it is hoped, will result in a better academic 
and professional knowledge of these subjects, and hence will im- 
prove the teaching in country schools. 

In order that the applicant for the first renewal of his certifi- 
cate may pursue the studies that will best prepare him for his 
work, suggestions from the county superintendents in whose 
county the applicant may have taught should be invited. This 
first renewal of a third-grade certificate might be designated as a 
"Third Grade B" certificate. 

The "Third Grade B" certificate should be made renewable 
by requiring the applicant to attend a professional school for 
teachers another term, again selecting subjects from the list of 
those he is required to teach. This second renewal should be for 
a period of two years, and might be designated as ' ' Third Grade 
A." 

Any person holding or having held a ' ' Third Grade A ' ' certifi- 
cate should be allowed to secure a second-grade certificate by at- 
tending two terms of nine weeks each of a summer school, or 
two terms of a normal school, and securing passing marks in 
American and English Literature, Composition, Physical Geog- 
raphy, and Pedagogy. This certificate should be valid for three 
years. 

Any person holding a second grade certificate should secure 
a first grade certificate by attending a professional school for 
teachers and securing passing marks in English History, Alge- 
bra, Geometry and Physics, and securing final credits in these 
subjects, or by taking an examination in these subjects, con- 
ducted by the county superintendent of schools. This certificate 
should be valid for six years. 

If the above recommendations were enacted into law, it would 
have the effect of centering the attention of teachers the first 



— 20 — 

few years on the subjects they are required to teach, and thus 
tend to create a professional attitude toward these subjects, and 
dignify them in the eyes of the teacher. 

When the certification measure of 1909 was placed on the stat- 
ute books, it was understood that it was only a temporary meas- 
ure that was to pave the way for a law which would demand, as 
a minimum preparation to teach, a year of professional training, 
and that at least the equivalent of two years' high school work 
should be demanded as preliminary to taking this professional 
training. The committee therefore recommends that after 1915 
these additional requirements be demanded, and that meanwhile 
more county training schools be organized, so that the supply of 
trained teachers may meet the increased demand. 

3. Country school supervision. 

The supervision of the country schools is far from what it 
should be. No one recognizes this more than the county super- 
intendents themselves. We are submitting herewith a table 
which gives the status of the county superintendency in the State 
of Wisconsin: 



— 21 — 



Coun ty 


Area 

of 

County 


Number 

of 
School 
Build 

ings 


Number 

of 
Teach- 
ers 


School 

Census 

1911 


Salary 


Special 

appro 

pria- 

tion for 
offlce 
assist- 
ant or 

deputy 


Spec'ial 
approjiria- 
tion for 
diploma 
examina- 
tion 




682 

930 

878 
1,197 

518 

662 

881 

317 
1,002 
1,200 

776 

557 

{•1,188 ] 

884 

454 

1,319 

844 

620 

498 

720 

1,424 

1,157 

576 

364 

763 

786 

978 

548 

790 

274 

327 

475 

634 

855 

885 

590 

1.532 

1,396 

451 

228 

915 

1,080 

900 

684 

206 

238 

543 

933 

800 

1,241 

323 

576 

706 

906 

711 

820 

1,342 

1,135 

510 

965 

734 

792 

907 

562 

834 

423 

562 

749 

639 

472 

785 


86 
64 

141 
80 
87 
92 
77 
67 

134 

152 

148 

103 

126 

129 

189 
66 
81 

135 
85 
15 

165 
33 

235 

126 
71 

126 
32 

106 

147 

112 
65 
60 
71 

129 
80 
77 

110 

200 
95 
64 
74 

154 
96 
59 

127 
59 
41 

112 

119 

123 

92 

77 

123 

171 

74 

127 

167 

43 

121 

113 

89 

118 

155 

30 

118 

78 

98 

117 

136 

111 

110 

103 


88 

67 
182 
116 
110 
123 

88 

95 
157 
226 
200 
130 
174 
180 
236 

76 

89 
162 
112 

31 
197 

65 
351 
150 

96 
187 

67 
145 
178 
173 

79 
' 67 

88 
195 

90 

83 

135 

242 
133 
92 
183 
223 
128 

66 
151 

93 

58 
167 
165 
143 
139 
112 
163 
240 
102 
185 
198 

71 
180 
194 
125 
170 
189 

53 
193 
100 
141 
160 
186 
149 
118 
129 


2,970 

2.577 

9.982 

4,329 

9.733 

5,791 

3,438 

5,826 

7,102 

11.659 

7,329 

4,637 

8.182 

7.. 336 

11.744 

5,386 

2,508 

7,335 

5,005 

1.231 

9,098 

2.347 

12,087 

4,973 

3,834 

6,220 

2,786 

5,887 

7,193 

6,846 

3,783 

6,068 

4,100 

6.413 

3,917 

2,836 

19,910 

15, 685 

6.615 

3,908 

12,074 

9,184 

8,112 

1,924 

9,606 

6.008 

2,708 

7,365 

8,165 

8,669 

5.142 

5,525 

6,265 

8.304 

3,421 

8,255 

7,982 

2,145 

11,335 

9,704 

5.319 

8,092 

9,104 

1,545 

6.375 

3.399 

7.877 

7,874 

9,271 

6,274 

5.159 

6,938 


900 

950 
1,100 

900 
1,000 
. 900 
1,000 
1,100 
1,000 
1,200 
1,350 
1,200 

900 

900 
1,400 
1,100 
1,200 
1,000 

900 

240 
1,030 

800 
1,500 
1,200 
1,200 
1,050 

500 
1,000 
1,200 
1,200 
1.200 

900 
1,300 
1,000 
1,000 
1,200 
^1,500 
2,000 
1,200 
1,000 
1,750 
1,000 
1,350 
1,200 
1,200 

900 

600 
1,000 
1,000 

900 

900 
1,200 
1,000 
1,800 
1.000 
1,100 
1,200 

600 

1,200 

.1,200 

■'■1,200 

900 
1,200 

600 
1,000 
1,000 
1,200 
1,200 
1,200 
900 
1,100 
1,200 


None 

None 

400 

600 

None 

None 

None 

None 

420 

360 

None 

None 

150 

100 

None 

None 

None 

400 

None 

None 

300 

None 

600 

300 

None 

100 

None 

None 

100 

100 

None 

None 

None 

200 

350 
600 
200 
None 
None 
100 
225 

180 

None 

None 

140 

175 

None 

None 

None 

350 

600 

25 

100 

450 

! None 

None 

300 

360 

None 

50 

None 

250 

None 

100 

.300 

175 

None 

200 

None 


None 


Ashland 


None 


Barron 


None 


Bayfield 


None 




None 


Buffalo 


50 


Burnett 


None 


Calumet 


60 


Chippewa 

Clark 


None 


Columbia 

Crawford 


25 
None 


Dane 1st 


50 


Dane 2d 


50 


Dodge 


100 


Door 


None 




None 






Eau Claire 

Florence 

Fond du Lac 

Forest 


25 

None 

125 


Grant 


None 




Act. Exp. 


Green Lake 

Iowa 


None 
100 


Iron 


None 




50 


.lefferson 


25 


Juneau 


None 




None 


Kewaunee 


Non6 
None 


L,a Fayette 

Langlade 


None 
None 




None 


Manitowoc 

Marathon 

Marinette 

Marauette 

Milwaukee 


Act. Exp. 
65 
None 

None 
None 


Oconto 








Outag-amie 

O/aukee 






None 






Polk 


None 




None 




None 




None 


Richland 


150 


Rock 


100 


Rusk 


None 




75 




200 




None 




None 


Sheboygan 


50 

75 


Trempealeau 


None 
None 


Vilas 


None 


Walworth 

Washlturn 

Washington 

Waukesha 


50 

None 

125 

100 

None 


Waushara 

Winnebago 

Wood 


None 
20 






Total for state.. 
Average per 


54,193 

1 752 


7,496 
104 


10,119 
140 


467.723 
6,496 


77,590 
1,077 


9,360 
267 


1,970 

82 







— 22 — 

NOTE.— Since the above table as compiled the foUowins changes have been made: 

Columbia County: The County Board at its November session voted an appropria- 
tion large enoui^ to provide a clerk for nine months. 

Dane County, 1st District: Salary increased to $1,200. No appropriation for clerk 
hire. Appropriation for diploma examinations, $50. 

Duim County: Salary increased to $1,200. Appropriation for diploma examination 
$38. 

Eau Olaire County: Appropriation for clerk hire $50. 

Langlade County: Salary increased to $1,200. 

Lincoln County: Appropriation for clerk hire and incidentals, $100. 

Oconto County: Appropriation for ofifite assistance increase dto $300. 

Polk County: Appropriation for office assistance increased to $300. Appropriation 
for diploma examination $100. 

St. Croix County: Appropriation for office assistance increased to $350. 

Washington County: Salary increased to $1,303. 

Waupaca County: Salary increased to $1,500. 

Waushara County: Appropriation for office assistance $50. 

.A.11 clianges in salary take effect July 1, 1913. 

It may be well, in this connection, to call attention to the work 
in the County Superintendent's office. The following are some 
of his duties : 

(a) Visit the schools under his supervision. Inspect the 
buildings, grounds, and equipment. Advise with the teachers 
and school officers. 

(b) Hold teachers' examinations; mark the papers and grant 
certificates. 

(c) Hold diploma examinations and grant diplomas. In some 
counties, additional aid has been provided for this purpose. 

(d) Hold teachers' institutes and meetings of various kinds. 

(e) Select library books for the various districts in his county. 

(f ) Make an annual report to the County Board. 

(g) Make an annual report to the State Superintendent, and 
any special reports that may be called for. Special reports are 
required regarding schools that receive special state aid. 

(h) Do all that he can to stimulate interest in educational 
matters by means of meetings, letters, newspaper articles, etc. 

(i) Receive reports from teachers regarding children who at- 
tend school irregularly, and report the same to the truant officer 
and to the industrial commission. 

It will be apparent from the foregoing table that it is impos- 
sible for the county superintendent ordinarily to do his work 
as it should be done. In only about half of the counties have 
special appropriations been made for clerical help. It is im- 
possible to do all the work that is outlined and give the schools 
adequate supervision. It is unnecessary to dwell upon the neces- 
sity of having the schools properly supervised. The position of 
county superintendent is the most important in rural educa- 
tion. He is the educational leader of the county. Upon his 



— 33 — 

leadership depends largely the progress of the schools. It seems 
to the Committee that this important position is not regarded as 
highly as it should be by the public. We believe that the pres- 
ent system does not enable the people to get at this problem in the 
way that they should. The candidates virtually nominate them- 
selves, so that the people really have little opportunity to select 
candidates who are especially fitted for the position. It seems to 
us that the people would have more power over educational af- 
fairs if they would have a County Board to look after this im- 
portant work. This Board could be selected by the people, and 
in this way represent their interests. If this Board were em- 
powered to select the superintendent and fix his salary, the peo- 
ple would have an opportunity to secure persons who are espe- 
cially fitted for this work and to retain them when found efficient. 
Under the present system, the people are unable to retain super- 
intendents in ease they are offered better salaries in other posi- 
tions. 

We therefore recommend that the people of the county be 
given the power to select a County Board of Education, whose 
duty it shall be to supervise the larger educational interests of 
the county. 

4. Arousing interest in education. 

One of the most important phases of the educational pro- 
gram is that which deals with getting the people interested in 
school. If the people become genuinely interested in education, 
it will be comparatively easy to make improvements. Recogniz- 
ing that this feature is an important one, a sub-committee was 
appointed to make a special study of this work, and their report 
follows : 

"The committee on making the school a social center has found 
it a most interesting subject and filled with possibilities for the 
rural school. 

Our pioneer grandparents tell us of the good old days when the 
school was so much better than the school of the present ; of the 
attention given to the three R's; of the spelling bees, singing 
schools, and various contests. 

We realize now that the success of the old-time school was due 
not so much to the attention given the three R's, as to its hold 
upon the community. 



— 21 — 

The great need of more social life in the country is evident; 
our schools are the one agency that reaches every home. There- 
fore our schools must make their own the problem of the social 
center for the community. 

From questionnaires sent Jut to county superintendents and 
training school principals we have learned that many things are 
being done at the present time to make the school a social and 
civic center. School contests of various kinds are being held in 
the rural schools, such as spelling, writing, arithmetic, corn 
growing and corn judging, etc. School clubs have been or- 
ganized in other places. Literary societies are found in many 
school districts. School programs of various kinds have been 
held in various parts of the state. 

The committee has taken up the work of preparing a bulletin 
containing suggestions for teachers and others who wish to enter 
into this great movement. The committee agreed that while the 
school is to be the center, the teacher must not bear the whole 
burden. Indeed, as the teacher is only a temporary resident the 
movement must become self -active if it is to live. 

The committee recommends: 

1. That the use of the schoolhouse as a social center for the 
community be encouraged. 

2. That all such use of the schoolhouse be under the direction 
of the school board, as they are responsible for the condition of 
the building. 

The committee has in preparation a bulletin, to contain re- 
ports of what has been done in this field and offering suggestions 
for social center work. It suggests the following means: 

Make the school a social center by means of 

a. The course of study. 

Make the school work touch the home; select, cure and test 
seed corn, not only as a school lesson but for the home ; teach real 
farm arithmetic ; plaster and paint real houses ; write letters for 
home, ordering supplies or whatever is necessary ; and give school 
credits for such work. 

b. The social activities of the pupils. 

Spelling clubs, sewiug clubs, reading clubs, and the like all 
furnish a motive for social gatherings. They lead toward the 
school instead of away. 

c. The school as a meeting place for all gatherings, such as 



— ^5 — 

farmers' meetings, farmers' clubs, socials or community obser- 
vance of special days, as Memorial Day. 

d. A teacher who is a leader and who understands community 
life." 

These meetings and gatherings of one kind or another are of 
great value in awakening the people to a realization of what can 
be done in country communities. They are valuable to the chil- 
dren themselves in that they furnish an opportunity for them to 
appear before audiences and thus develop their powers of ex- 
pression. Such training is one of the greatest essentials of an 
education. Besides, these meetings do much to keep the older 
people in touch with the young, thus conserving that sympathy 
which is essential to happiness in the home. Again, these meet- 
ings have a tendency to bring about co-operation among the peo- 
ple. This co-operation will be beneficial not only in an educa- 
tional way, but it will eventually result in the economic and so- 
cial betterment of rural communities. 

5. Higher education in country communities. 

The committee has not discussed to any extent that phase 
of the educational question dealing with the higher education. 
That better facilities should be provided for country children to 
continue their mental development is evident to all. On every 
hand we hear it said that the children leave school too young. 
To send children away from home at an early age is also a great 
disadvantage. Many parents can not afford to do so even if 
they have the desire. Besides, when the children are sent to the 
cities for their education, they are placed in an environment that 
becomes a strong factor in leading them from the country. 

The first suggestion made by the committee is that we do all 
we can to develop the educational centers we already have. The 
plan of the state department of education to increase the effici- 
ency of the state graded schools and make them centers is a good 
one. As these schools grow in numbers and in interest higher 
grades may be added. We suggest that the work in these grades 
be of such a nature that it will tend to increase the interest of 
the child in home life rather than try to fit into the course of 
study of some high school. 

Under the law provision is made for the establishment of coun- 
try high schools. These schools should be so run that they meet 



— 26- 

as far as possible the needs of the commimity. The course of 
study should be so administered that the work will have a ten- 
dency to awaken in the students a desire to enter into the ac- 
tivities of home life. The suggestion given above to make use of 
the centers we already have is again applicable. Many of the 
high schools now organized are really country high schools, and 
these should be filled with the spirit of country life. "Where no 
high school facilities are available, new schools should be es- 
tablished. 

We believe that in many schools it would be well to establish 
short courses. Many young people can not enter school in Sep- 
tember and continue until June because of the labor on the farml 
If a class were organized in November to continue until April, 
thousands of our best boys and girls would receive untold ad- 
vantages. The additional cost would be slight when compared 
with the benefits to be derived. Young people who have to help 
their parents with the regular work of the home get a training 
that is invaluable. Could this training be supplemented by that 
of a good practical school, we should have as a result a remark- 
able increase in rural efficiency. 

The objection might be made that this scheme would break up 
the regularity of the school work. We contend that it is the duty 
of the school to accommodate itself to the conditions as they are, 
and to serve every useful purpose possible. We can afford to 
have irregularities if we can secure results. 

It might also be possible here and there in rural communities 
to make some provisions for evening schools. We have had such 
in the past. During the present year continuation schools 
have been established in the cities. We believe it might be possi- 
ble at certain rural centers to organize some schools of this kind 
when other opportunities are not available. 

Other matters needing attention. 

We desire in this report to call attention to a few other mat- 
ters that need to be studied in order that proper remedies may be 
applied. 

1. The school district is too small an area in which to levy 
taxes. We find school districts that have an assessed valuation 
of $20,000 or less, and others that have as much as a quarter of a 
million. Very often some of these districts with the small valu- 



— 27 — 

ation have to raise the largest amount of local tax. The result 
is that the tax rate in some districts is very high, while in others 
it is very low. To remedy this inequality we believe a larger tax 
unit should be adopted, preferably the county. This would 
equalize the tax burden over a larger area. 

2. The present compulsory attendance law does not affect fam- 
ilies that live more than two miles from school. Many parents, 
it is true, send their children to school, although the law does not 
compel them to do so. Nevertheless, there are children who grow 
up without getting the necessary schooling. It is the duty of the 
state to provide educational facilities in some way for all chil- 
dren. Consequently, the compulsory attendance law should be 
amended. 

3. A study of the work to be done in the state superintendent's 
office shows that there is not adequate assistance provided. The 
members of the department are in direct touch with the schools 
of the state, and can do much to aid and direct in an intelligent 
way the educational Avork. We urge, therefore, that additional 
help be provided. 

4. Special aid should be given to the rural schools. It is the 
testimony of the county superintendents that the $150 aid has 
done much to improve the physical conditions of the schools. 
Special aid is given to other schools coming up to certain require- 
ments. It is but fair, therefore, to recognize the same need in the 
rural schools. 

The school and the home. 

The committee desires to call attention to a goal which 
should be before us in all our educational work — the proper re- 
lation between the school and the home. It should ever be kept 
in mind that the school is not an institution for itself, but that 
it exists for the purpose of aiding the home in its all-important 
task of bringing up the children. It should be the aim of the 
school to send the children home at the end of the day, at the end 
of the year, and at the completion of the course, with the desire 
to be of service in the home and in the community. Not only 
should the work of the school itself be practical, that is, adapted 
to the needs of the community, but all through school life there 
should be instilled in the children the spirit of service and a will- 
ingness to be of help in doing the common every day duties of 
home life. We note with pleasure that efforts are also being made 



— 28 — 

in other states in this direction. In Oregon a movement has beeil 
started to have the school give credit for the performance of home 
duties. Whether official credits are given or not, the teacher 
should always give recognition to this work and in this way im- 
press upon the children that work in the home well done is a 
part of a person's education. 

The present Course of Study for the country schools should be 
revised and reorganized in order to better meet the needs of the 
schools in fitting children for life upon the farm. The Course at 
piesent is over-crowded. It is impossible for one teacher to do 
well all of the work in all of the subjects outlined. City schools 
having one teacher to a grade do not attempt to complete all of 
the work outlined by the Course of Study for the country schools. 
Some of the subject matter should be eliminated, especially in 
arithmetic and grammar ; other matter should be simplified ; and 
in other cases matter closely allied to farm life should be substi- 
tuted for that which is so far removed from the life of the child 
that it is beyond his comprehension. This revision of the Course 
of Study should not be done hurriedly, but it should be done with 
much care and might well occupy the attention of a special com- 
mittee for two or more years, so that the work shall be effectively 
done. 

Summary. 

The following is a summary of our recommendations : 

1. The home and the school should be brought into the closest 
relation possible. It should be the aim of the institutions that 
are training teachers to impress this relationship upon the stu- 
dents and to give practical suggestions to show how this aim may 
be accomplished. 

2. The use of the schoolhouse for the purpose of holding meet- 
ings of various kinds should be encouraged and all who have to 
do with school activities should do everything possible to make 
these meetings the means of developing the powers that lie hid- 
den in the people of the community. These meetings may be of 
various kinds — school entertainments, debating societies, spelling 
bees, literary clubs, farmers' clubs, etc. 

3. The consolidation movement should be encouraged wherever 
possible. The question itself should be discussed among the pec- 



—29— 

pie and the law should be simplified and made more definite re- 
garding transportation and state aid. 

4. The Course of Study should be carefully revised and reor- 
ganized. 

5. A county board of education should be provided having pow- 
ers of general supervision over the schools of the county. This 
board should hire the superintendent just as a local board now 
hires the teacher, and furnish his office with the equipment and 
assistance that would be necessary. Such a board would work 
with the local boards and in this way the people could accomplish 
results that are now impossible. The county board of education 
would look upon school affairs from a broader view-point and 
would be the proper body to take in charge the changing of dis- 
trict boundaries. It is the belief of the committee that such a 
board would add greatly to the powers of the people themselves, 
for they could then through this representative board direct the 
educational policies of the schools. 

6. More state aid should be given the elementary schools— this 
aid to be granted providing certain standards are maintained. 
Provision should also be made for some special fund for trans- 
portation purposes so that these so-called special aids may not be 
taken out of the regular apportionment. 

7. A law should be enacted requiring all teachers after Janu- 
ary 1st, 1915, to have at least one year of definite professional 
training, such course to be preceded by a reasonable academic 
preparation — say two years beyond the elementary school course. 
This year 's training should include work that will be of greatest 
value to the person who prepares for teaching a country school. 

8. In planning for higher school work for country communi- 
ties, effort should be made to develop the centers we now have by 
adding grades and by administering the course to meet the needs 
of the people. 

9. The area for local school tax levy should be made larger, 
thereby equalizing the tax burden. 

10. The compulsory attendance law should be amended in 
some way so that the state will take recognition of the children 
living beyond the two-mile limit. Facilities should be provided 
so that this law can be more rigidly enforced. 

11. Additional help could profitably be provided for the state 
superintendent's office. 



— 30 — 

It will be seen that not all of the above recommendations 
require legislative action. We can improve the schools by the 
action of the legislature; but much of the improvement 
after all rests with the people themselves in their various com- 
munities, and it is the duty of the state to so administer its schools 
that each community can work to the greatest advantage. 

Rose Cheney, 
A. H. Christman, 
George F. Comings, 
F. A. Cotton, 
John S. Donald, 
Leo p. Fox, 
Charles L. Hill, 
F. S. Hyer, 
M. H. Jackson, 
W. E. Larson, 
A. H. Long, 
Ellen B. McDonald, 
M. V. O'Shea, 
C. E. Patzer, 
Geo. E. Scott, 

Committee. 



LIBRARY OF CONGRESS 



llillillillilillllliiilllllllllllli iiiiiii {III {^ 

022 126 046 6 W 



